Government Responds to Harper Review
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GOVERNMENT RESPONDS TO HARPER REVIEW 25 November 2015 | Australia, Brisbane, Melbourne, Perth, Sydney Legal Briefings The Treasurer has released the Government's response to the Competition Policy Review. IN BRIEF The Treasurer has released the Government’s response to the Competition Policy Review (Harper Review). Of the 56 recommendations made in the final report for reform across competition law, policy and institutions, the Government has supported 39 in full or in principle, 5 in part and notes or remains open to a further 12 recommendations. Even where recommendations are endorsed, the specifics of any legislative reform are uncertain. Many of the Competition Policy recommendations will require ongoing discussions and negotiations between the Commonwealth and the state and territory governments, and will need to be refined following additional consultations and studies (including by the Productivity Commission). The Government has accepted that the drafting of the Competition and Consumer Act 2010 (Cth) (Act) needs to be simplified and has indicated that it will release exposure draft legislation designed to implement many of the Panel’s recommendations. The Government has not endorsed the recommended changes to the misuse of market power provision. It has indicated that it will consult further on options to reform section 46 and release a discussion paper on this topic. The Government supports the creation of a new competition body, the Australian Council for Competition Policy, which is intended to provide leadership in developing and implementing a broad competition policy agenda. However, it has not, at this time, endorsed the creation of a new Access and Pricing Regulator which would involve removing access and pricing functions in regulated industries from the ACCC. BACKGROUND On 24 November 2015, the Treasurer released the Government’s response to the Competition Policy Review (Harper Review). This response is the culmination of a long process that began on 4 December 2013 when the Prime Minister and the Minister for Small Business announced a broad-sweeping review of the Competition and Consumer Act 2010 (Cth) (Act) and competition policy. The Harper Review panel (Panel) released the Competition Policy Review Draft Report on 22 September 2014 (discussed in our update.1 The Panel released the Competition Policy Review Final Report (the Final Report) on 31 March 2015, discussed in our update.2 OBSERVATIONS The Government has, for the most part, signalled a pro-reform stance in its response to the Final Report. The Treasurer has declared an intention to ‘reboot competition reform policy’ . This is an important first step. However, the scope of key reforms remain uncertain and certain issues have been deferred. For many recommendations Government support is high level and prone to ‘motherhood’ statements. It is long on support for reform as a concept, but short on detail. For example, the Government’s response fails to consider the model legislative provisions included within the Final Report. This is not surprising given the nature of the document. However, at least in respect of the competition law recommendations, it means that the precise nature of any reform will not be apparent until after future rounds of consultation and exposure draft legislation is released. The Harper Review targeted three main areas: Competition Law, Competition Policy and Competition Institutions. Competition Law The Government has supported the simplification of the legislation. This is a good thing although the extent of the simplification will depend on the specific wording of the proposed exposure drafts. The Government has sensibly pressed pause in respect of the Panel’s recommendations to introduce an effects test to the misuse of market power provisions. Other significant recommendations endorsed by the Government include the removal of the price signalling prohibitions and the introduction of a ‘concerted practices’ concept into the legislation. Not surprisingly, but disappointingly, the Government endorsed the Panel’s approach to merger authorisation and agreed that the ACCC, rather than the Australian Competition Tribunal, should consider merger authorisation applications in the first instance. Competition Policy While supporting many of the Panel’s Competition Policy recommendations, the Government’s responses are, for the most part, expressed at a high level of generality. The Government’s response suggests a general direction for reform. The Government supports working with the states and territories to develop and secure their agreement to a new competition principles and reform agreement, which is to be considered by the Council of Australian Governments (COAG) within 12 months. Depending on the ultimate result of these negotiations and the final terms of the principles, this could be a significant development. Where the Government has supported the Panel’s agenda, for example, in respect of the adoption of competition principles into the provision of human services, the specific details of any government policy will be deferred following additional studies and consultations, including following Productivity Commission reviews. The Government’s response correctly notes that many of the recommendations, for example, in respect of taxi and ride-sharing, retail trading hours, and planning and zoning, are not areas where the Commonwealth has a direct responsibility and will require discussions and negotiations with the state and territory governments before any reform agenda is implemented. Competition Institutions The Government has agreed to the creation of a new competition law institution, the Australian Council for Competition Policy, which will replace the National Competition Council. However, many of the significant institutional recommendations have been rejected or deferred. For example, the Government did not agree with the Panel’s recommendation to abolish the requirement for sector-specific ACCC Commissioners and indeed indicates a specialist agricultural Commissioner will be appointed. The Government also appears to have endorsed an ongoing role for the ACCC in respect of market studies. Finally, while noting that the Government remains open to the recommendation, it has not endorsed the creation of a new Access and Pricing Regulator which would involve removing these powers from the ACCC. While the creation of a new Access and Pricing Regulator was broadly supported by relevant business interests, it was strongly objected to by the ACCC. Further details regarding the Government’s approach to key recommendations are provided below. COMPETITION LAW Market power: arguably the most controversial recommendation of the Panel was that an ‘effects’ test be introduced into section 46 of the Act. In response, the Government has agreed to release a discussion paper on this topic. This effectively ‘presses pause’ on the issue for now, which is a sensible approach. A principal concern of the inclusion of the effects test was the potential to chill pro-competitive conduct. In addition, the substantial change to the law recommended by the Panel would have effectively abandoned the last 40 years of case law. As a consequence of the Government’s approach it appears that the debate regarding reform to section 46 will continue for some time yet. Cartels and joint venture exemption reform: the Government supports the Panel’s recommendation to simplify the overly complex prohibitions on cartel conduct. The Government will develop draft legislation for consultation to simplify definitions to improve clarity of the cartel provisions. The exposure draft legislation will also aim to broaden the joint venture exemption so that it does not limit legitimate commercial transactions (such as through vertical supply arrangements). It remains to be seen whether the model legislative provisions set out in the final report will be adopted by the Government. These are sensible recommendations that should provide greater certainty in respect of the cartel provisions and for joint venture participants in circumstances where substantial time and effort is often dedicated to satisfying technical legal requirements, rather than managing output expanding joint venture operations. Merger process: The key recommendation from the Panel that merger parties should no longer have the ability to go directly to the Australian Competition Tribunal for merger authorisations has been accepted by the Government. The amendments effectively combine the formal merger clearance and merger authorisation processes, with the ACCC being the decision maker at first instance. The proposed change is disappointing. Recent experience with the Tribunal, including in respect of the AGL matter, shows that the Tribunal can effectively deal with complex merger matters. Delay can kill a merger. Removing the option to go directly to the Tribunal may, in certain circumstances, mean that a beneficial merger does not proceed. Price signalling: the Panel’s recommendation to remove the existing price signalling provisions and introduce a regime based on the European concept of ‘concerted practices’ was supported by the Government. The removal of price signalling prohibitions is a positive step. However, it remains to be seen how the concerted practices concept will be codified in the Government’s exposure draft legislation. Clarify the drafting of exclusive dealing or repeal altogether: the Government has not outright supported the Panel’s recommendation that section 47 of the Act be repealed and vertical restrictions